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CITY PLANNING COMMISSION

May 22, 2013/Calendar No. 11 C 130155 PPQ

IN THE MATTER OF an application submitted by the NYC Department of Parks and Recreation

(DPR) and the USTA National Tennis Center Inc., pursuant to Section 197-c of the New York City

Charter, for the disposition of a lease of city-owned property to the USTA National Tennis Center Inc.

located northerly of United Nations Avenue North, between Meridian Road and Path of Americas (Block

2018, p/o Lot 1) within Flushing Meadows-Corona Park, Community Districts 3, 4, 6, 7, 8, 9, Borough of

Queens .

This application for the disposition of 0.68 acres of city-owned property was filed by the New

York City Department of Parks and Recreation (DPR) and the United States Tennis Association

National Tennis Center Inc. (USTA) on December 31, 2012 to facilitate the relocation and

enlargement of the Grandstand Stadium, increase and improve the pedestrian circulation areas,

and improve the overall visitor experience at the National Tennis Center.

BACKGROUND

The United States Tennis Association National Tennis Center Inc. (USTA) is a non-profit

organization whose mission is to promote the growth and development of tennis. The area of the

proposed disposition is located approximately 860 feet along the southern boundary of the Billie

Jean King National Tennis Center and extends 25 feet to 38 feet south into United Nations

Avenue North between Meridian Road and Path of the Americas, within Flushing Meadows-

Corona Park, a joint interest area involving community boards 3, 4, 6, 7, 8, and 9. Pursuant to a

strategic plan to improve the USTA’s Billie Jean King National Tennis Center, DPR will add the

0.68 acres of parkland to an existing 99-year lease with the USTA. The lease was executed in

1993 and expires in 2092.

The 42-acre Billie Jean King National Tennis Center is bounded by the railway tracks of the

Long Island Railroad (LIRR)’s Port Washington line to the north, United Nations Avenue North

to the south, the Passarelle Building and Path of the Americas to the east, and the Grand Central

Parkway to the west. The US Open, which dates to 1881, moved to the USTA facility in

 

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Flushing Meadows-Corona Park in 1978. In 1993, the NTC site was expanded from 21.6 acres

to approximately 42.2 acres to allow for the construction of Arthur Ashe Stadium, and other

facilities. The 23,500-seat stadium was completed in 1997. The 1993 expansion required

alienation and disposition of parkland by long-term lease from DPR to the USTA following

review by the City through its Uniform Land Use Review Procedure (Application No.

C930044PPQ; Adopted September 23, 1993). The tennis center was renamed the USTA Billie

Jean King National Tennis Center in 2006.

The 42-acre National Tennis Center is one of the world’s largest public recreational tennis

facilities. For 11 months of the year, its facilities are open to the public for indoor and outdoor

tennis. The NTC is also host to the US Open, one of the sport’s four Grand Slam championship

tennis tournaments. The event is staged during a two-week period around the beginning of

September and is attended by a cumulative total of approximately 700,000 spectators and is

broadcast worldwide.

The NTC includes three large tennis stadiums: Arthur Ashe Stadium, Louis Armstrong Stadium

and the Grandstand Stadium, with 16 practice tennis courts located throughout the site. Two of

the NTC site’s three stadiums—Louis Armstrong Stadium and Grandstand Stadium—are

approaching 50 years of age and nearing the end of their useful lives. Notable deficiencies

include: constricted circulation; inadequate restrooms; prone to flooding; and infrastructure

issues, as the stadiums were designed as temporary structures for the 1964 World’s Fair. The

existing Louis Armstrong Stadium, located in the northeast corner of the site, contains

approximately 10,500 seats. It was originally built as part of the 1964-1965 Singer Bowl and is

at the end of its useful life. The current 6,000-seat Grandstand Stadium is located adjacent to

Louis Armstrong Stadium, on its east façade, it was also built as part of the Singer Bowl.

Currently, there is an approximately 100-space surface parking lot in the northeast corner of the

site (Lot B), and a 200-space parking lot in the northwest corner of the site (Lot A) that

additionally contains a transportation center used for staff and facilities for handling player and

sponsor transportation and credentials and media credentials, as well as sponsor ticketing and

lounge space.

 

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The more than 1,200-acre Flushing Meadows-Corona Park was created for the 1939-1940

World’s Fair and it also hosted the 1964-1965 World’s Fair. It offers a variety of event-oriented

recreational activities, as well as lawns, fields, and playgrounds for active and passive recreation.

Portions of this regional park (but not the NTC) have been improved with funds from the Federal

Land and Water Conservation Fund (LWCF) Act, and much of the park, including the NTC, is

subject to LWCF requirements. The health, welfare and recreational public purposes of the NTC

have been recognized by the U.S. Department of the Interior, National Park Service (NPS),

which determined in 1993 that the expansion and renovation of the NTC is consistent with the

LWCF grant-in-aid manual requirements governing Flushing Meadows Corona Park.

The applicants' development goals are to substantially upgrade the NTC facility and increase its

capacity by an additional 10,000 daily spectators during the US Open. The proposed disposition

of 0.68 acres of parkland to the USTA would create additional space within the NTC site to

allow for the relocation and enlargement of Grandstand Stadium, increase and improve

pedestrian circulation space within the site, and improve the overall visitor experience at the

NTC. The NTC would continue to be open to the public for 11 months of the year after the

proposed project is completed.

Grandstand Stadium would be relocated to the southwest corner of the site and enlarged from

6,000 to 8,000 seats. The new stadium would also include concession, retail, and broadcasting

space, as well as a two-story (one story above grade), approximately 31,000-gross square foot

structure for administrative and operational uses such as locker rooms, restroom facilities, and

first aid facilities. To create space for the new Grandstand Stadium, four of the existing seven

southerly courts on the NTC site would be relocated approximately 50 feet south of their current

location and the other three would be relocated approximately 30 feet south of their current

location. The subject disposition is needed to facilitate the relocation of these tennis courts and

the construction of the Grandstand Stadium. In addition, a new walkway would be constructed

along the northern side of the relocated courts, connecting the relocated Grandstand Stadium

with the NTC entrance at the South Gate, the South Plaza, and Court 17 at the southeast corner

of the site. The proposed walkway would be 41 feet in width and would be landscaped.

 

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The 0.68 acres of parkland to be disposed of currently consists of a narrow strip of landscaped

area and one paved lane of the three-lane United Nations Avenue North, which would be reduced

to two, approximately 16-foot-wide, lanes under the proposed plan. The approximately 16-foot

wide paved area that would be eliminated is lightly used for walking, running and biking, as well

as by DPR vehicles and to service the NTC during the US Open. The landscaped portion of the

parkland includes a triangular median area near the connector road, a median adjacent to the

northernmost lane of United Nations Avenue North, and a narrow strip of lawn adjacent to the

current NTC fence.

Any trees that would be removed in or immediately adjacent to the 0.68-acre disposition area

would be replaced in compliance with DPR’s applicable rules and regulations. A new, 10- to 12-

foot-wide landscaped buffer, with a mix of trees, shrubs and groundcover, would be planted

along the exterior of the relocated NTC southern fence line.

The USTA’s other improvements to the NTC would include renovations of existing structures

and the construction of new facilities within the roughly 42 acre area covered by their current

lease. The USTA intends to construct a new stadium on the site of the existing 10,500 seat Louis

Armstrong Stadium. The new Louis Armstrong Stadium would have a greater capacity at

15,000. The USTA also plans to replace two existing parking lots with parking higher capacity

parking structures. Currently, there is an approximately 100-space surface parking lot in the

northeast corner of the site, and a 200-space parking lot in the northwest corner of the site. Under

the proposed project, northeastern lot would be replaced with an approximately 270-space, 3-

level parking garage, and northwestern lot would be replaced with an approximately 423-space,

2-level parking garage. The new parking structure would be screened off with plantings from the

main entrance to the facility.

The relocation of the Grandstand Stadium to the southeastern corner of the NTC would require

the relocation of a connector road at the eastern edge of the site. The connector road displaced

by the relocation of the stadium would be relocated to an approximately 0.3-acre area south of

United Nations Avenue North near the Queens Museum of Art parking lot. New approximately 5

 

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to 6-foot-wide pedestrian walkways would also be created. The small portion of Meridian Road

below the overpass would be widened to connect to an existing bicycle lane.

The disposition by long-term lease of the 0.68-acre southern boundary area would require a

home rule request from the City Council to the State Legislature, and New York State legislation

to authorize the alienation of that site. Following that disposition, this area would remain

mapped park land.

ENVIRONMENTAL REVIEW

This application (C 130155 PPQ), was reviewed pursuant to the New York State Environmental

Quality Review Act (SEQRA), and the SEQRA regulations set forth in Volume 6 of the New

York Code of Rules and Regulations, Section 617.00 et seq. and the City Environmental Quality

Review (CEQR) Rules of Procedure of 1991 and Executive Order No. 91 of 1977. The

designated CEQR number is 12DPR005Q. The lead agency is the Department of Parks and

Recreation.

It was determined that the proposed actions may have a significant effect on the environment. A

Positive Declaration was issued on June 12, 2012, and distributed, published, and filed. The

applicant was asked to prepare a Draft Environmental Impact Statement (DEIS). Together with

the Positive Declaration, a Draft Scope of Work for the EIS was issued on June 12, 2012. A

public scoping meeting was held on the Draft Scope of Work on July 23, 2012, and comments

were accepted by the lead agency through August 8, 2012. A Final Scope of Work for an EIS,

reflecting the comments made during the scoping, was issued on December 27, 2012.

The applicant prepared a DEIS, and the lead agency issued a Notice of Completion for the DEIS

on January 3, 2013. Pursuant to SEQRA regulations and CEQR procedures, a joint public

hearing was held on the DEIS on April 24, 2013, in conjunction with the Uniform Land Use

Review Procedure (ULURP) applications. Written comments were accepted by the lead agency

through May 6, 2013. A Final Environmental Impact Statement (FEIS) was completed and a

Notice of Completion for the FEIS was issued on May 10, 2013. The FEIS identified significant

 

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adverse impacts with regard to transportation. Details on these impacts and measures to

minimize or eliminate these impacts, where feasible and practicable, are described below:

Transportation – Traffic

The transportation analysis determined the projected trip increments would result in a significant

adverse traffic impact. (There are no significant impacts to transit, pedestrian, or safety

conditions.) For 11 months of the year, the NTC is primarily a public recreational facility, except

during the US Open period at the end of August and early September. The proposed increase in

attendance has the potential to impact traffic and transportation conditions. The proposed

increase in attendance of 10,000 persons for the daytime session would result in a projected peak

period increase of approximately 2,030 transit trips and 954 vehicle trips. The peak period transit

trips would consist of approximately 1,540 subway trips, 455 Long Island Rail Road (LIRR)

trips, and 35 Metropolitan Transportation Authority (MTA) New York City Transit bus trips.

The peak period vehicle trips are estimated to consist of 452 auto trips, 498 taxi trips (or 249

roundtrips), and four charter bus trips. When distributed over the transportation network, the

projected trip increments would result in significant adverse traffic impacts, including increased

levels of congestion and delays, though temporary in nature and only during the event’s peak

periods.

The traffic management program currently in place, including the Traffic Enforcement Agents

(TEAs), would be able to effectively manage the increased level of traffic operations and project-

related significant adverse impacts on traffic. This is primarily due to the distribution of trips

over the large transportation network, the proximity and direct access to the local highway

network from the project site, the capacity of the Mets-Willets Point subway station, and the

special event management program implemented by the New York City Police Department

(NYPD), especially along College Point Boulevard. Though the projected increase in vehicle

trips exiting the US Open at the conclusion of the daytime session is anticipated to lengthen the

travel time for departing patrons, these delays would largely be confined within Flushing

Meadows Corona Park and to a segment of the Long Island Expressway (LIE).

 

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With the additional site-generated traffic, the roadway network is anticipated to continue to

experience congested levels of service and delays during event conditions. Due to the traffic

management program, however, conditions typically observed when intersection operations

become saturated (queues extending beyond storage capacity, blocked turning movements,

aggressive driver behavior, etc.) would be managed in the field. Field observations conducted

during the US Open validate that the traffic management program and TEAs are able to

effectively manage traffic flow during event peak periods. These findings take into consideration

the frequency of the event, the duration of the event’s peak period, the infrequency of conflict

dates with Mets games, direct connectivity to the area highways, and the special event traffic

management provided by the New York City Police Department including TEAs.

UNIFORM LAND USE REVIEW

This application (C 130155 PPQ) was certified as complete by the Department of City Planning

on January 7, 2013, and was duly referred to Community Board 3, 4, 6, 7, 8, 9 and the Borough

President, in accordance with Title 62 of the Rules of the City of New York, Section 2-02(b).

Community Board Public Hearing

Community Board 3 held a public hearing on this action on March 14, 2013 and, on that date, by

a vote of 33 in favor, 1 opposed, and 1 abstaining, adopted a resolution recommending

disapproval of the application with the following conditions:

Community Board 3 Queens recommends that the Application for Expansion of the USTA in its

current form be Disapproved with Modifications for the following reasons:

USTA's plan to construct parking garages on mapped public parkland. There is no plan on file to replace the 0.68 acres of parkland. Further, USTA's current proposal does not include:

• A plan to remediate the soil and study the long term health effects of cars parking on the grass.

• Develop a comprehensive parking plan by consulting with the surrounding Community Boards, mitigation of the traffic conditions through commissioning a new traffic study that would include Roosevelt Avenue, 108th Street, Northern Boulevard, Astoria Boulevard, Ditmars Boulevard, 34th Avenue and 37th Avenue.

Plan for the replacement of Trees- when removed replace within Flushing Meadows- Corona Park (FMCP).

 

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Landscaping that is done for the US Open should be maintained throughout the year. Safety Plan- during the US Open, rely on private security and less on local Police

personnel. Improve lighting to ensure the safety of the patrons coming to and from the US Open.

In addition, the USTA's current proposal does not include a Community Benefits Agreement that would allow for :

• USTA to partner with the local Business Improvement District for the purpose of cleaning up, maintaining and beautifying Roosevelt Avenue from 69th Street to 114th Street as it is the gateway to all the entertainment complexes within FMCP. USTA to commit to making improvements within FMCP. For example contribute to a fund for the restoration of the New York Pavilion, Meadow lake and any other areas of FMCP that need regular maintenance, upkeep, and overall cleanliness.

• USTA to help establish a new and credible Conservancy to improve FMCP. It would have an annual expense budget of $500,000 dollars or 2.5% of the gross revenue on an annual basis. The initial contribution to the Conservancy should be $20 million dollars. Form an Advisory Council with one member from each of the surrounding community boards for oversight on funding and disbursements of funds to FMCP.

In addition, USTA's current proposal does not include provisions to increasing public accessibility to the grounds and programs such as:

• Community Boards that surround the facility should be provided with complimentary or significantly discounted grounds passes during the US Open and year round programs for youth and seniors. Further, tickets for Arthur Ashe Kid's Day should be given directly to each community board in Queens for distribution. The facility and grounds should be accessible to the public year round.

• Make the facilities available to community groups for meetings and events at no charge.

Finally, USTA's current proposal does not include: • Improving communications to the community about USTA job openings

for mid to high level positions. • Establishing an annual Community Day for Queens Residents. • Advertising what Queens has to offer before, during and after the US

Open, including providing information about local businesses and cultural institutions when patrons purchase their tickets.

• Contracting with women, minority owned and local businesses in Queens for current and future projects. Further, setting aside 10% of the concession storefronts during the US Open for Queens-based food services and restaurants located in the surrounding communities.

Community Board 4 held a public hearing on this action on March 12, 2013 and on that date, by

a vote of 38 in favor, adopted a resolution recommending disapproval of the application with the

following conditions:

 

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$15 Million in a trust fund to be used exclusively for FMCP with an additional $500K/year maintenance fund to be overseen by an advisory board composed of members from all affected Community Boards.

Replacement of park land to be exclusively within FMCP through the giving back of any alienated land (equal to or exceeding 0.68 acres).

Overall better safety within the park including but not limited to better lighting and security cameras at key locations.

Better community outreach with community related events, special programs, discounts and the distribution of tickets to local organizations on Arthur Ashe Day.

The bringing back of "Queens Day" (to be sponsored by the USTA). The reimplementation of the park trolley. Develop the South end of the park for more exposure to the natural waterway.

Renewal of the model airplanes field, and kite flying fields, and possibility of bringing back canoeing and kayaking to Willow Lake at FMCP.

Police from all 5 Community Boards to take part in a special FMCP Task Force. Section near the blue box trailer at the SW Corner of Meadow Lake would be prime

location for a multipurpose center. (Police unites, Park Rangers, staging area for various venues including bird walks, nature trail walks, and Boy and Girl Scouts).

Community Board 6 held a public hearing on this action on February 13, 2013, and on March 13,

2013 by a vote of 25 in favor and 5 opposed, adopted a resolution recommending approval of the

application with the following conditions:

Donate additional funding for annual maintenance, security, and upkeep of FMCP. Replace trees that will be damaged or removed for USTA development. Design the parking garages to conform to the Dept. of Parks design. Be part of a committee of representatives from the surrounding Community Boards to

discuss and determine areas of needed maintenance and upkeep. All construction jobs should use unionized trade workers.

Community Board 7 held a public hearing on this action on March 11, 2013, and on that date, by

a vote of 30 in favor and 6 opposed, adopted a resolution recommending approval of the

application with the following conditions:

The USTA would establish a capital endowment fund of $15 million and an annual expense fund of $300,000 for maintenance and all money would be used only for FMCP - oversight of all funding will include a member of each of the affected CB's.

All trees damaged or needing to be replaced must be done within FMCP- any additional trees will be replaced will be placed within the 6 Community Boards park locations.

Substantial discount program for seniors and children in the zip codes surrounding FMCP.

 

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The parking garages exterior designs (facade) [should be] aesthetically pleasing and in conformance with a park design.

Tryouts for the National Anthem or any other event will be held in Queens. Arthur Ashe Day - allocation of tickets should be given directly to the surrounding

CB's. Continued evaluation & mitigation of all concerns. USTA to be in partnership with DPR on maintenance and cleanliness of the perimeter

of the USTA property. USTA will give priority for goods & services to local vendors when buying.

Community Board 8 held a public hearing on this action on February 26, 2013, and on March 13,

2013 by a vote of 26 in favor and 8 opposed, adopted a resolution recommending approval of the

application with the following conditions:

0.68 acre will be replaced in another location within FMCP. $15 million will be donated upfront to an escrow account for a newly expanded

FMCP conservancy to benefit the park. $1 million annual operating fund dedicated directly to the park's upkeep for the

duration of the lease to be adjusted with the cost of living. A Community Advisory Board (CAB) will be created with at least two members of

each affected Community Board (3,4,6,7, 8 & 9) to hold regularly scheduled bimonthly meetings.

Discounted tickets will be provided for the US Open to residents of the affected community boards, with eligibility to be determined by the community boards.

Free admission to Arthur Ashe Kids’ Day will be determined by the affected community boards, not Borough President's office.

Job fairs will be provided to residents of the affected community boards prior to the job fairs half for the general population.

Construction job opportunities will be provided for Unions and Minority/Women Owned Businesses.

Tennis programs will be offered to public schools and Beacon programs within CB 8. Creation of tennis courts at Junior High School 216 and M.S. 217, including

installation of equipment for hanging nets, nets and boundary lines.

Community Board 9 held a public hearing on this action on February 12, 2013, and on March 13,

2013 by a vote of 22 in favor, 20 opposed, and 1 abstaining, adopted a resolution recommending

disapproval of the application.

Borough President Recommendation

This application (C 130155 PPQ) was considered by the Queens Borough President, who issued

a recommendation on March 11, 2013, approving the application, with the following conditions:

 

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Any alienated land should be fully replaced; All trees removed or damaged must be replaced within FMCP in accordance within

DPR tree replacement specifications and policy; A Project Labor Agreement must be developed, finalized and in place well before any

work begins; A specific plan to engage MWBE businesses, local hiring (including job fairs),

maximizing local business opportunities must be developed, finalized and in place well before any work begins;

USTA donation to establish a $15 million FMCP Benefit Fund that would supplement not supplant the NYC Budget basic allocation for DPR’s maintenance and operation of FMCP;

Creation of FMCP Alliance that would include representatives of the affected Community Boards, the Office of the Borough President, affected Councilmembers and the Department of Parks and Recreation. The new FMCP Alliance would be responsible for administration of the FMCP Benefit fund, private fundraising for ongoing maintenance and upkeep of the park, park programs and improvements;

The stadium to be rebuilt on the footprint of the existing Louis Armstrong Stadium must also be named the Louis Armstrong Stadium. Louis Armstrong who lived nearby on 107th Street has deep ties to the Corona area. His former home is now the Louis Armstrong House Museum dedicated to preserving his work and an extensive archive of musical papers and personal belongings. Retention of the National Tennis Center’s connection to Louis Armstrong is natural and fitting considering his extraordinary stature as an ambassador and icon of jazz beloved around the world.

Borough Board Review

The Queens Borough Board held a public hearing on this action on April 8, 2013. A quorum

was not present and no vote was taken.

City Planning Commission Public Hearing

On April 10, 2013 (Calendar No. 6) the City Planning Commission scheduled April 24, 2013 for

a public hearing on this application (C 130155 PPQ). The hearing was duly held on April 24,

2013 (Calendar No. 17). There were 19 speakers in favor of the application and eight in

opposition.

Seven of the speakers testifying in favor of the application were representatives of the co-

applicants and the project team. The Assistant Commissioner for Planning & Natural Resources

for DPR provided an overview of the project and described the current conditions of the 0.68

acre area that is the subject of this application. He further testified that the USTA and DPR have

been discussing a compensation package for the alienated parkland and that he believes that an

 

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agreement would be formalized prior to the Commission’s vote on the application. The land use

attorney for the USTA introduced the project team. The Executive Director and Chief Operating

Officer of the USTA testified next and provided an overview of the USTA’s strategic vision. He

stated that the USTA’s plan would transform the NTC into the “safest, most modern fan- and

player-friendly tennis facility in the world,” and he asserted that the improvements to the NTC

facilitated by the alienation are necessary for the center to compete with other more recently

developed venues around the world. The Director of the National Tennis Center Operations

followed and testified as to how the development would be facilitated by the proposed

disposition and alienation of parkland. The USTA’s project architect testified as to how the

disposition and alienation would allow for a reconfiguration of the tennis courts along the

southern edge of the site to allow for better pedestrian circulation within it, and explained that

the western edge of the disposition area, would accommodate apportion of the Grandstand

Stadium’s footprint. The Parks Department Director of Parklands and a representative from

AKRF, who had conducted the DEIS analysis, also appeared in favor.

Five speakers in favor of the application testified to the importance of the NTC as a venue for the

sport of tennis to the public. These speakers highlighted the role the NYC plays in providing

access to tennis facilities and instruction to school children and collegiate athletes.

Six speakers in favor of the application testified to the economic importance of the project. A

representative of the Queens Economic Development Corporation described the economic

impact of the NTC and the US Open, including approximately $750 million in revenue annually

and close to 6,000 seasonal jobs, 85% of which are filled by New York City residents. A

representative of the Queens Chamber of Commerce testified that the project would generate

close to 800 construction jobs. Three members of trade unions and a seasonal employee of the

NTC testified that the USTA provides jobs to community residents and that the proposed

renovations to the facility would provide even more opportunities for employment.

The Executive Director of New Yorkers for Parks testified that her organization would support

the project if certain conditions were met, especially the replacement of an equivalent amount of

 

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parkland and achieving a greater commitment to the maintenance and improvement of Flushing

Meadows-Corona Park by the USTA.

Two speakers in opposition testified on behalf of community based organizations. The President

of the New York City Park Advocates testified that the alienation of parkland was unwarranted

because the NTC could be renovated without expanding beyond the area the USTA currently

leases and that parkland in New York City is too valuable a resource to allow for it to be

alienated to facilitate the proposed expansion of the NTC. A representative of the New York

City Central Labor Council stated that the organization was opposed to the proposed action

because of the USTA’s poor record of labor relations.

The Chairperson of Queens Community Board 3 reiterated the conditions stated in Community

Board 3’s conditional disapproval of the application and expressed her concern that the

management of the NTC does not communicate well with the surrounding community.

A representative of the State Senator for the 11th District read the senator’s statement opposing

the proposed action. The senator asserted that the NTC could improve its facilities without

expanding its lease-hold.

Four of the speakers in opposition were local residents or representatives of area civic groups.

These speakers touched on many of concerns cited by the community boards, and they stated

that parkland was of vital importance to the health and welfare of residents in the surrounding

neighborhoods and it was already in too short in supply to allow any amount of it to be used for

development.

There were no other speakers, and the hearing was closed.

WATERFRONT REVITALIZATION PROGRAM CONSISTENCY

This application (C 130155 PPQ), in conjunction with those for the related actions, was reviewed

by the Department of City Planning for consistency with the policies of the New York City

Waterfront Revitalization Program (WRP), as amended, approved by the New York City Council

 

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on October 13, 1999 and by the New York State Department of State on May 22, 2002, pursuant

to the New York State Waterfront Revitalization and Costal Resources Act of 1981 (New York

State Executive Law, Section 910 et seq.). The designated WRP number is 12-077.

The City Planning Commission, acting as the New York City Coastal Commission, having

reviewed the waterfront aspect of this action, finds that the actions will not substantially hinder

the achievement of any Waterfront Revitalization Program (WRP) policy and hereby determines

that this action is consistent with the WRP policies.

CONSIDERATION

The Commission believes that the disposition of 0.68 acres of city-owned property in Flushing

Meadows-Corona Park for the expansion and reconstruction of the Billie Jean King National

Tennis Center, as modified, is appropriate.

The Commission believes this disposition action will address key operational deficiencies of the

existing center and greatly improve operations at the U. S. Open and other tennis events, thereby

ensuring that NYC can continue hosting the US Open. The project will upgrade out-of-date

facilities, improve pedestrian circulation, and expand the tennis center's capacity by 10,000

guests daily.

The proposed action would allow for the NTC to be extended southward for a distance ranging

from 30 to 50 feet into an area currently occupied by a planted area adjoining the NTC site and

the northernmost of the three paved pathways that make up United Nations Avenue. The

Commission believes that the use of the 0.68-acre strip of parkland to accommodate seven

relocated tennis courts and the new Grandstand Stadium will allow for the NTC site to be

reconfigured in a highly optimal manner. The new NTC site plan will allow for greater daily

attendance and improved pedestrian circulation within the facility.

The Commission notes that after completion of the proposed project, the NTC would continue to

be open to the public for indoor and outdoor tennis for 11 months of the year. The 0.68 acres

that would be disposed of would remain mapped parkland and, as with the existing NTC, this

 

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area would be used for recreational uses that are considered compatible with surrounding park

uses.

The Commission acknowledges the testimony at its public hearing and the recommendations by

the community boards and Queens Borough President that any alienated park should be fully

replaced and believes that it would be appropriate for the USTA to return to DPR a portion of the

land under its current lease in return for the 0.68 acres that will be disposed of, and is therefore

modifying the application.

The Commission received correspondence on May 3, 2013 from the USTA and DPR explaining

an agreement whereby the NTC will return to the city a 1.56-acre portion of currently alienated

parkland. The land that will be surrendered is comprised of two parcels used for active and

passive recreational use. The two parcels include 0.75 acres of landscaped park area (Parcel 1)

and 0.81 acres of park space containing five tennis courts which are accessible to any member of

the public (Parcel 2). The surrendered land would return to the jurisdiction of the Parks

Department and would be used by the USTA for limited purposes relating to the US Open. The

USTA would continue to maintain the courts in a good state of repair at their cost. The

Commission notes that this agreement responds to a primary concern that the amount of parkland

within FMCP should not be diminished. The Commission understands that the USTA will also

work with the Department of Parks and Recreation to facilitate park improvements in Flushing

Meadows-Corona Park in response to the concerns raised during public review.

The Commission is pleased to learn that the USTA will be undertaking the development of an

outreach plan to improve communications with the surrounding community. This plan would

involve regular presentations to each of the surrounding community boards of tennis programs,

job fairs, special events, and other opportunities available to local residents.

The Commission notes that the disposition by long-term lease of the 0.68-acre southern

boundary area and the removal of 1.56 acres from the boundaries to be leased to the USTA

would require a home rule request from the City Council to the State Legislature for legislation

to authorize the alienation of the .68 acre-parcel and to rededicate as park land the 1.56 acre area

within Flushing Meadows-Corona Park.

 

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The Commission has considered the additional comments made by Borough President, the

Community Boards and at the City Planning Commissions’ public hearing. However, many of

the comments relate to issues that are beyond the scope of the proposed action including

concerns about the USTA’s business practices, dissatisfaction with the terms of the existing lease

that will remain unchanged, and issues with development that is proposed to occur within the

area currently leased by the USTA.

The Commission also believes that the USTA should endeavor in the future to work more

closely with the Parks Department and other stakeholders in the area on matters concerning

Flushing Meadows-Corona Park as a whole.

Overall, the Commission believes this disposition is critically important to facilitate the needed

replacement of the aging Grandstand and Louis Armstrong stadiums and to address deficiencies

in visitor circulation areas at the Billie Jean King National Tennis Center, thereby, ensuring that

the City will continue to annually host the country’s premier tennis event, the United States

Open, in a world-class manner.

RESOLUTION

RESOLVED, that having considered the Final Environmental Impact Statement (FEIS), for

which a Notice of Completion was issued on May 10, 2013, with respect to this application

(CEQR No. 12DPR005Q), the City Planning Commission finds that the requirements of Part

617, State Environmental Quality Review, have been met and that, consistent with social,

economic and other essential considerations:

From among the reasonable alternatives thereto, the actions to be approved are ones

which minimize or avoid adverse environmental impacts to the maximum extent

practicable; and

The adverse environmental impacts revealed in the environmental impact statement

will be minimized or avoided to the maximum extent possible by incorporating as

conditions to the approval those mitigative measures that were identified as

practicable.

 

17 C 130155 PPQ

The development shall include those mitigative measures in the Final Environmental Impact

Statement (CEQR No. 12DPR005Q) issued on May 10, 2013 (and identified as practicable), as

follows:

The transportation analysis determined the projected trip increments would result in

significant adverse traffic impacts including increased levels of congestion and delays.

However, the traffic management program currently in place including the Traffic

Enforcement Agents (TEAs) would effectively manage the increased level of traffic.

Therefore, due to the infrequency and duration of the event, and the ability of the traffic

management program and TEAs to adequately manage traffic flow and safety of all street

users during the US Open, no mitigation measures beyond the continuous traffic

management provided by the TEAs would be necessary.

The report of the City Planning Commission, together with the FEIS, constitutes the written

statement of facts, and of social, economic and other factors and standards, that form the basis of

the decision, pursuant to Section 617.9(c)(3) of the SEQRA regulations; and be it further

RESOLVED, that the City Planning Commission, in its capacity as the City Coastal

Commission, has reviewed the waterfront aspects of this application and finds that the proposed

action is consistent with WRP policies; and be it further

RESOLVED, by the City Planning Commission, pursuant to Section 197- c of the New York

City Charter, that based on the environmental determination and the consideration described in

this report, the application (C 130155 PPQ) of the New York City Department of Parks and

Recreation and the USTA National Tennis Center, Inc. for the disposition of a lease of city-

owned property located within Flushing Meadows-Corona Park, Borough of Queens, is

approved, provided that this disposition shall not be made unless and until the following shall

have occurred:

The USTA surrenders to the City of New York the following two parcels of park land

totaling 1.56 acres and located east of David Dinkins Circle that are currently part of the

 

18 C 130155 PPQ

premises alienated and leased to the USTA by the Department of Parks and Recreation:

Parcel 1, measuring 0.75 acres; and Parcel 2, measuring 0.81 acres, for purposes of

active and passive recreation in Flushing Meadows-Corona Park. Such surrender shall be

subject to the following conditions and limitations with respect to Parcel 2: a. that the

USTA shall not utilize the tennis courts on Parcel 2, except during the US Open when

the USTA may be granted permission to have exclusive use of such courts, provided

further that the USTA may seek permission from the Department of Parks and

Recreation for use of the 5 tennis courts for other tournaments; and b. the USTA shall

remain responsible for maintenance of the five tennis in a state of good repair for

purposes of their use by the general public .

The above resolution (C130155 PPQ), duly adopted by the City Planning Commission on May

22, 2013 (Calendar No. 11) is filed with the Office of the Speaker, City Council, and the

Borough President in accordance with the requirements of Section 197-d of the New York City

Charter.

 

AMANDA M. BURDEN, FAICP, Chair ANGELA M. BATTAGLIA, RAYANN BESSER, IRWIN G. CANTOR, P.E., MICHELLE DE LA UZ, MARIA M. DEL TORO, JOSEPH DOUEK, RICHARD W. EADDY, ANNA HAYES LEVIN, ORLANDO MARIN, Commissioners BETTY Y. CHEN, Commissioner, Recused